Union Station - Queens Quay Transit Link Study

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Union Station - Queens Quay Transit Link Study City of Toronto Union Station - Queens Quay Transit Link Study Final Report April 2019 Executive Summary The Union Station – Queens Quay Transit waterfront, ridership has grown steadily Link Study considered two technologies for as development along the waterfront enhancing the connection between Union has increased. Today, growth in the East Station and Queens Quay: an expanded Bayfront has resulted in the need to continue streetcar loop at Union Station; or, an expanding transit along the eastern waterfront. Automated People Mover (APM) using the The existing Union Station streetcar loop existing tunnel replacing the existing streetcar. cannot accommodate the demand from new riders, particularly when transit is added to the As the central node of the Waterfront Transit east. In 2010, an Environmental Assessment Network, the Union Station – Queens Quay (EA) was completed on an expansion of the Transit Link provides the means of connecting streetcar loop at Union Station as a means of Canada’s busiest rail station and Toronto’s providing the infrastructure to serve growing waterfront, with its many residences, demand. employers, and cultural and event amenities. Ensuring the Link meets the needs of a In 2016, City of Toronto Council approved the growing population will allow the successful Waterfront Transit Reset; a comprehensive development of the waterfront to continue, study of the needs and options for serving millions of annual commuter, leisure, implementing improved transit along Toronto’s and tourist trips. waterfront including the connection of the waterfront LRT to Union Station. In early Overall, streetcar was found to be preferable 2018, Council directed staff to find an to APM as a means of connecting Union appropriate and implementable solution for Station and the waterfront due to its the Union Station – Queens Quay Transit advantages for the overall waterfront LRT Link, carefully considering suitable options network and user experience benefits. given the importance of the Link and the costs The conclusion of a preferred technology associated with its renewal and expansion. and development of a preliminary design is an important step in the next phases of Due to the extended length of study of this developing the Waterfront Transit Network in project, transit in the East Bayfront has been Toronto. significantly delayed. Development in the East Bayfront has therefore preceded the Background necessary transit to adequately support it. Currently, Port Lands flood protection works Since the opening of the Union Station are underway to facilitate further development streetcar loop in 1990 first established a of the east waterfront. higher order transit connection along the Arup Canada Inc City of Toronto | Union Station - Queens Quay Link Study | March 2019 Options Development • Increased accessibility from a user experience perspective due to a lack of The direction by Council began the focused transfer to the East Bayfront and Central comparative study of the EA-approved Waterfront; expanded streetcar loop and an alternative option to repurpose the tunnel with an • Strongest amount of flexibility for the future Automated People Mover (APM) through the Waterfront Transit Network implementation Union Station – Queens Quay Link Transit and TTC service planning; and, Study, which was proposed as a potentially • No substantial cost disadvantages. cost-effective alternative. Various technical studies since the completion Public Consultation of the EA determined that these were the two preferred technologies to carry forward Public consultation also showed that the to preliminary design. The Study has been consulted public overwhelmingly supported led by the City of Toronto with a technical the streetcar option. The APM presented advisory team from the City, TTC, and advantages from a constructability Waterfront Toronto, and contribution from perspective with shorter construction timelines Metrolinx. due to minimal impacts below the rail viaduct at Union Station, but both options are feasible Designs & Costs and construction risks are well-understood because of current construction efforts at Following an options screening process Union Station. and preliminary user experience and transportation assessment, the two preferred Next Steps options identified to carry through design development were (1) a modification of the To proceed with the detailed design and existing streetcar loop at Union Station to construction of a preferred option, the City of accommodate additional streetcars, per the Toronto and partner agencies will require: EA-approved option, or (2) the repurposing of the streetcar tunnel and the introduction • Approval to proceed from City Council and of a new APM connecting Union Station to funds for the next phases of work; streetcar along Queens Quay. • A potential EA Addendum given the refinements to the station configuration and Stations were designed to the latest standards possible relocation of the streetcar portal and integrated with the Union Station retail concourse, with the opportunity for integration east of Bay Street; with existing and future developments at • Advancing the design to at least the 30% the north and south ends of the Link. Both stage and updating the cost estimate to the designs had very similar capital and operating AACE-3 or CIQS-C level, fully assessing costs. Notably, the streetcar better serves the risks with construction; East Bayfront and wider waterfront while the APM serves a smaller geographic area with • A review of delivery options with funding more concentrated ridership. partners; and, • An assessment of the impacts to pedestrian Following a comparative evaluation of the circulation and access during construction. two options, streetcar was identified as the preferred option for the following reasons: City of Toronto | Union Station - Queens Quay Link Study | March 2019 Artist’s depiction of future Queens Quay streetcar station ©DTAH City of Toronto | Union Station - Queens Quay Link Study | March 2019 Table of Contents 1 Overview and Background 6 1.1 Study Purpose 1.2 Importance and Implications 1.3 Primary Study Area 1.4 Projected Ridership 2 Options Development 10 2.1 Technologies 2.2 Options Considered 2.3 Preliminary Evaluation Framework 2.4 Options Screening 2.5 Preferred Options for Design Development 3 Concept Design & Evaluation 16 3.1 Concept Designs 3.2 Evaluation Process 3.3 Evaluation Outcomes 3.4 Risks 4 Public Consultation 33 4.1 Stakeholder Advisory Committee Input 4.2 Public Information Centre Input 4.3 Overall Outcomes 5 Conclusions & Next Steps 36 Appendices Activity along Queens Quay ©Waterfront Toronto 1 Overview & Background Overview & Background 1.1 Study Purpose For these reasons, this transit link does and will serve not only a high volume of riders, The purpose of the Union Station – Queens but those who may be occasional or first-time Quay Link Study (the Study) is to confirm an visitors to the city. To continue supporting appropriate and implementable solution for population and employment as well as a the connection of Union Station to Queens growing tourism sector, the Study carefully Quay and the East Bayfront. The output of the evaluated these unique considerations. Study is intended to inform decisions about next steps in advancing higher order transit 1.3 Primary Study Area to the East Bayfront and other communities that are currently underserved by transit, by The primary study area for this segment of the recommending a preferred technology for the Waterfront Transit Network is the Bay Street link. corridor between Union Station and Queens Quay, and the Queens Quay corridor between 1.2 Importance and Implications York Street and Freeland Street. This is shown in Figure 1. The Union Station – Queens Quay Transit Link (USQQL) is a unique transit project in Beyond the study area, consideration was Toronto for a variety of reasons: had over the course of the study for the Jack Layton Ferry Terminal south of Queens Quay • Though it represents a short distance and the wider Waterfront Transit Network, (approximately 550m), the link serves a very owing to the operational impacts in the high volume of riders in a high traffic area of broader network of the USQQL. The Initial the city. Business Case considers the full Waterfront Transit Network. • It is a vital connection to enable the development of the waterfront east and west. The growth and success of the wider Waterfront Transit Network relies on the strength and capacity of the link between the waterfront and Union Station. • The link connects Canada’s busiest multi- modal rail hub with local transit and other transportation services including Billy Bishop Airport. • The link is of importance to travellers of all types, including commuters and all-day riders such as tourists and special event riders. Tourists and special event riders are a unique consideration given the high number of venues in the area including Scotiabank Arena, Harbourfront Centre, and the Toronto Islands/Jack Layton Ferry Terminal. Figure 1: Primary study area City of Toronto | Union Station - Queens Quay Link Study | March 2019 7 1.4 Projected Ridership Ridership in the Bay Street corridor and along Queens Quay is anticipated to grow substantially by 2041. Already, growth has resulted in challenges comfortably accommodating passengers at the existing Union Station loop. The figures to the right show existing versus future transit demand in the Bay Street corridor based on City of Toronto models. Currently, approximately 1,000 riders use the existing southbound streetcar service, and approximately 1,500 riders use the northbound service, between Union Station and Queens Quay in the AM Peak Hour. Additionally, thousands of walk trips are made along Bay Street and in the PATH network between Union Station and destinations at Queens Quay and Bay Street. By 2041, transit demand in the corridor is projected to be 4,000 to 8,000 passengers By 2041, transit southbound in the AM peak hour based on demand in the corridor estimates from the City of Toronto GTAv4 is projected to be 4,000 EMME model (Appendix A1). Demand varies to 8,000 passengers based on the technology of the USQQL.
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